Jacksonville Area Multimodal Center Feasibility Study

June 2012

Executive Summary Recent studies of public transit within the Jacksonville urban area suggest that the efficiency and effectiveness of these operations could be significantly improved with the establishment of a regional multimodal transportation center. Furthermore, state and federal transportation policies encourage investment in these types of facilities to promote accessible, safe and efficient multimodal transportation. The purpose of this report is to synthesize findings from a review of transportation system operations and policies into a feasibility assessment for a multimodal transportation center in Jacksonville, North Carolina. Key findings of this study include: Establishment of a multimodal transportation center in Jacksonville is consistent with local, state and federal transportation and land use policies. A multimodal transportation center will serve as the focal point for public transportation within the community, improving coordination among the systems, resulting in greater operational efficiency and effectiveness. A multimodal transportation center will expand the mobility of citizens within the community and make travel seamless among all modes accommodated by the facility. A multimodal transportation center will improve the convenience, comfort and safety of public transportation by creating a facility where passengers can obtain information about public transit services, await transfers among transportation systems and rendezvous once reaching Jacksonville as a destination. The multimodal center can be located and designed in a manner that will enable it to grow with Jacksonvilles transportation systems and potentially contribute to smart growth patterns as well as the potential for redevelopment. The local financial burden associated with the facility is minimal in proportion to the total project cost. Ninety percent of the development/construction expenses are eligible for federal and state grants. Operating costs of the facility are also eligible for state and federal funding; however, these costs may be offset by revenues generated from tenants within the facility - potentially including OUTS, Greyhound, Amtrak and private business.

Based on the findings of this study it appears that the creation of a Jacksonville multimodal transportation center is feasible and represents a sound investment of public (federal, state and local) funds to further quality of life within the Jacksonville community through enhanced local and regional mobility.

Table of Contents Introduction Public Transit in the Jacksonville Area Other Public Transportation Systems in the Jacksonville Area The Multimodal Center Concept Local Plans and Policies Supporting a Jacksonville Multimodal Center NCDOT Plans and Policies Supporting a Jacksonville Multimodal Center USDOT Plans and Policies Supporting a Jacksonville Multimodal Center A Multimodal Transportation Center in Jacksonville 1 2 4 5 10 12 12 13

Introduction Jacksonville is a vibrant community that is committed to providing top quality services and infrastructure for its business, visitors and especially its permanent residents. It is the county seat of Onslow County, located in southeastern North Carolina, and has the benefit of a significant military presence - the foremost being Marine Corps Base Camp Lejeune and the Marine Corps Air Station New River. Jacksonville enjoys the distinction of having the youngest median age population in North Carolina (23) and one of the youngest in the country. Onslow Countys population continues to experience a high rate of growth, in fact, the 2010 census indicates that Onslow County grew by eighteen percent over the previous decade, to more than 177,000 permanent residents. This likely is due to growth aboard local military installations and its attractive location on the North Carolina coast. Population growth is expected to continue in the future. Projections completed by the State of North Carolina in May of 2012 anticipate that more than 250,000 residents will live in Onslow County by 2030. The Jacksonville City Council, Onslow County Board of Commissioners, North Carolina Department of Transportation (NCDOT) and United States Department of Transportation (USDOT) recognize the importance of regional mobility through multimodal travel and have demonstrated their commitment to providing safe, reliable and attractive multimodal transportation opportunities within the Jacksonville urban area. As a vital part of this transportation network, public transit systems work tirelessly to ensure that members of the community without private automobiles have the opportunity to access employment, healthcare and other fundamental needs that enable them to live healthy and productive lives. Furthermore, public transit along with safe highways, pedestrian and bicycling facilities significantly contribute to the local economy, environment and, in general, uphold the quality of life within the Jacksonville urban area. Recent studies of public transit within the Jacksonville urban area suggest that the efficiency and effectiveness of these operations could be significantly improved with the establishment of a regional multimodal transportation center. Furthermore, state and federal transportation policies encourage investment in these types of facilities to promote
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accessible, safe and efficient multimodal transportation. The purpose of this report is to synthesize findings from a review of transportation system operations and policies into a feasibility assessment for a multimodal transportation center in Jacksonville, North Carolina. Public Transit in the Jacksonville Area There are two types of locally-operated public transit services in the Jacksonville area: fixed-route service (vehicles operating routes with set schedules) and demand response service (vehicles that pick-up and drop-off passengers at various times and locations upon request). Public transit services in the Jacksonville area are provided by three entities: Jacksonville Transit, Onslow United Transit System (OUTS) and the Camp Lejeune Base Motor Pool. Each of these entities, including the services they provide, is described in more detail below: Jacksonville Transit Jacksonville Transit is an urban transit system operated by the City of Jacksonville providing local fixed-route bus service for a large portion of the Jacksonville area. Jacksonville Transit operates two fixed-routes seven days a week, with service provided weekdays between 6:00 AM and 6:00 PM and weekends between 10:00 AM and 6:00 PM. In addition, Express Routes are operated on Friday evenings from 5:00 PM to 2:00 AM, Saturdays from 11:00 AM to 2:00 AM and Sundays from noon until 6:00 PM. Express Routes are primarily designed to improve the mobility of military personnel stationed at Camp Geiger, Camp Johnson and Camp Lejeune. Jacksonville Transit maintains a fleet of eight buses and the system has been operated in its current form since 2007. Jacksonville Transit is operated under a multiyear contract with MV Transportation (a private transit management company) and OUTS. OUTS Additional public transportation services within the Jacksonville area are provided by a local non-profit agency known as Onslow United Transit System (OUTS). OUTS has served as the Countys coordinated public transportation operator since 1979 and along with assistance from the City of Jacksonville, was the primary creator of the current fixedroute system - Jacksonville Transit. Under a contracted service agreement with the City of Jacksonville, OUTS provides demand response public transportation services for the disabled within 3/4 of a mile of the Jacksonville Transit fixed-route network. These
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services complement the fixed-route system as required by the Americans with Disabilities Act of 1990 (ADA). OUTS also operates a one-call center for Jacksonville Transit and serves as the contracted transportation service operator for other programs within Onslow County including: Onslow County Senior Services Coastal Enterprises Onslow County Department of Social Services Medicaid non- emergency medical transportation Elderly and Disabled Transportation Assistance Program Rural General Public Program OUTS also provides medical service trips to destinations outside of the Jacksonville area including: New Bern, Moorhead City, Greenville, Wilmington, Chapel Hill, Raleigh and Durham. Connectivity between the Jacksonville Transit fixed-routes and OUTS services are uncoordinated at this time, making it difficult for passengers to extend their range by transferring between the two systems. Camp Lejeune Base Buses Camp Lejeune offers shuttle services for military personnel and their families within and amongst local military instillations. The Camp Lejeune base bus system is operated by a private transit management company (Coach America) under a contracted service agreement and is overseen by the Base Motor Pool. Base Bus #1 operates exclusively on Camp Lejeune with a single bus assigned to an outand-back alignment between the bus terminal, the Naval Hospital, French Creek and Courthouse Bay. The round trip takes about 90 minutes to complete, but depending on where the destinations are on the alignment, a bus passes by approximately every 30 minutes. Service begins at 7:00 AM and ends at 6:30 PM. Base Bus #2 that shuttles between the Naval Hospital on Camp Lejeune, Camp Johnson and Camp Geiger. Similar with Base Bus #1, the bus follows an out-and-back alignment and is operated with a single vehicle. The route departs from the bus terminal roughly every 105 minutes. The out-and back alignment means destinations are served twice
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within the 105 minute period, however, service is in a single direction only and not evenly spaced. Base Bus #2 is available from 7:00 AM to 6:15 PM. Base Bus #3, operates during winter months only (November 1 March 30) and connects Camp Lejeune, Camp Johnson, Camp Geiger and the New River Air Station. A one-way trip between Court House Bay on Camp Lejeune and the Air Station Exchange Building takes between 60 and 70 minutes. There are roughly four round trips per day that operate between 10:00 AM and 6:00 PM.

Connectivity between Jacksonville Transit and the Camp Lejeune base bus service is uncoordinated at this time, making it difficult for passengers to extend their range by transferring between the two systems. Other Public Transportation Systems in the Jacksonville Area Additional publicly-accessible transportation systems exist within the Jacksonville area including: Greyhound - Greyhound Lines, Inc. operates daily interacity bus service to Jacksonville from a terminal located on Onslow Drive. This service provides connections to multiple destinations throughout North Carolina and the United States; however, connectivity to Jacksonville Transit, OUTS and the Camp Lejeune base bus system is very limited at this time. Greyhound riders generally hail a taxi or walk from the terminal to extend their range of mobility. Although limited connectivity currently exists among Greyhound and existing public transit services, Greyhound staff has indicated a desire to improve coordination among the systems by routing service through the Jacksonville multimodal center if/when it is operational. Amtrak - Amtrak is currently in the process of developing a regional shuttle that will connect multiple urban areas in southeastern North Carolina to passenger rail service in Wilson, North Carolina. It is expected that the shuttle will run between Wilmington and Wilson via Jacksonville and Kinston, connecting local residents to an existing rail station in Wilson. Amtrak riders will purchase a single ticket providing them access to the shuttle service and the train. Program development staff with Amtrak has indicated a strong desire to coordinate the shuttle with existing local public transit systems when it goes into effect. Furthermore, Amtrak has also indicated a desire to sustain coordination among the systems in the future by routing service through the Jacksonville multimodal center if/when it is operational.

Bicycle and pedestrian network Jacksonville maintains an extensive bicycle and pedestrian transportation network including miles of greenway trail, bicycle lanes and sidewalks. A number of improvements to this network are planned in the coming years, including several additional miles of greenway trail. The infill of sidewalks along major roadways continues to be a priority and the number bicycle lane miles will increase substantially in the coming years as the NCDOT restripes several main roadways to include these facilities. Given the Citys existing and future network, if the Jacksonville multimodal center were to be located in close proximity of the downtown area, users of the facility would have safe and easy access to the bicycle and pedestrian system. Albert J. Ellis Airport - The Albert J. Ellis Airport (OAJ) serves the Jacksonville area with daily service provided by two carriers: Delta and US Airways. Although local public transit does not currently serve OAJ, it remains a high priority of the Jacksonville Metropolitan Planning Organization and transit service providers within the region. In the future, a Jacksonville multimodal center could serve as the staging area for an airport shuttle. This would allow for connectivity to existing transit services, greatly expanding the range of travelers to and from OAJ. Taxi Services - Taxi services are prevalent in Jacksonville and are commonly used by military personnel and the general public to connect with destinations that are not accessible by transit or within walking distance. While taxi services tend to be more convenient for the user, they are much more expensive than public transit. Furthermore, although taxi and public transit systems tend to compete for patrons, providing access to taxis with the multimodal center would greatly expand the range of facility users to areas not served by public transit. The Multimodal Center Concept As the name suggests, a multimodal center is a hub where numerous transportation systems converge so that users have safe and convenient access to multiple travel options
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at a centralized location. In most cases, a multimodal centers primary function is to join local public transit routes at a single transfer point where passengers can expand their range by transferring among routes/systems. Other forms of transportation are typically accommodated by a multimodal center as well, including walking, biking, private automobiles, intra-city buses (Greyhound, Amtrak shuttle), ADA paratransit, taxis, airport shuttles and in some cases passenger rail. When properly planned and designed, a multimodal transportation center will provide safe and convenient access to all available modes of travel and seamless transfer among them. Multimodal transportation centers generally provide climate-controlled waiting areas, bathrooms and security systems for passengers waiting to board or transfer. Real time information on departures and arrivals is often provided within these waiting areas to assist passengers in navigating the system and to make the experience of using public transportation more predictable and enjoyable. These amenities not only enhance the comfort and convenience of public transportation, they also help to help improve public perception and attract new riders. Multimodal centers often provide administrative office space for transportation agencies and break/shift change areas for drivers. This provides transit operators the ability to directly oversee all services at one centralized location and improves the connectivity between administrative functions and system operations. Multimodal transportation centers can also serve as visitor information centers by providing information to travelers on local attractions, shopping and cultural points of interest in the community. They are often designed as distinct, attractive structures that serve as gateways to their community. In some cases, these facilities are also designed to include leasable office space for accommodating other potential facility users (OUTS, Greyhound and Amtrak for instance) as well as leasable space for businesses that support passenger needs. Examples of businesses that commonly locate within multimodal centers include restaurants, banks, coffee shops and convenience stores. Pictured below are examples of multimodal transportation centers that have been recently designed and/or constructed in communities similar to Jacksonville. The primary modes that serve each of the facilities are referenced. Note that design features vary widely among the examples and facilities tend to vary in scale based upon need. Successful multimodal facilities are generally designed and located to blend with the existing community fabric and exude a positive image to the public. Cues from existing land features, architecture, historical events and other influential aspects the community are often reflected in design features and materials used to construct the facility. Given that these centers are public spaces, design features and materials are also selected to maximize passenger safety, while
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minimizing the need for future maintenance. In accordance with federal guidelines, the functional lifespan of a multimodal facility is expected to range 40 to 50 years. As a result, these centers are designed to accommodate system growth during that time period through pre-planned expansions.

Project Examples
Petersburg, VA Wendel Modes: Intercity Bus, Intracity Bus, Taxi

JACKSONVILLE TRANSIT

Project Examples
Grand Rapids, MI Wendel Modes: Intercity Bus, Intracity Bus

JACKSONVILLE TRANSIT

Project Examples
Fredericksburg, VA Wendel Duchscherer Modes: Intercity Bus, Intracity Bus

Kalamazoo, MI Wendel Duchscherer Modes: Intercity Bus, Intracity Bus, Taxi, Passenger Rail
JACKSONVILLE TRANSIT

Project Examples
Lynchburg, VA Wendel Modes: Intracity Bus, Taxi, Commuter Rail

JACKSONVILLE TRANSIT

Project Examples
Savannah, GA Wendel Duchscherer Modes: Intracity Bus, Intercity Bus, Taxi, Trolley, Bike Share, Bicycle

JACKSONVILLE TRANSIT

Local Plans and Policies Supporting a Jacksonville Multimodal Center Since Jacksonville Transits commencement in November 2007, numerous planning efforts have been completed to ensure the growing demand for public transportation services are met and that efforts to address these needs are regionally coordinated. Further, land use plans completed during this timeframe also support the multimodal transportation concept and the opportunity for using public facilities to foster smart growth and redevelopment. Planning documents relevant to this feasibility study are summarized in chronological order below: Jacksonville & Onslow County Coordinated Human Services Transportation Plan (April 2009) This plan provides a vision, goals and objectives for expanding and enhancing mobility opportunities throughout the Onslow County region. It identifies opportunities for Jacksonville Transit and OUTS to expand their role in providing human services transportation in addition to identifying operational and marketing goals and common capital needs - including facilities such as the multimodal center. Onslow United Transit System, Community Transportation Service Plan (September 2009) This plan reviews the current performance and organization of OUTS, recommending strategies to improve operations and/or management to increase mobility options for clients of social service agencies, citizens and commuters. The plan also identifies several areas whereby OUTS and Jacksonville Transit should jointly pursue various organizational, marketing, capital and operations efforts in order to provide an integrated regional transit system and allow the region access to federal funding sources that are intended for such coordinated purposes. New River Regional Transit Master Plan (October 2009) This plan provides Jacksonville Transit, OUTS and the Jacksonville Metropolitan Planning Organization with a short- and long-term transit service and operations plan to position the region to develop a region wide transit system.

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Transportation Demand Management Plan, MCB Camp Lejeune/ MCAS New River (June 2011) Commissioned by the Military Growth Task Force, this plan provides recommendations for reducing congestion and improving the efficiency of existing transportation systems in and around Marine Corps Base Camp Lejeune. Recommendations promote the coordination of services among Jacksonville Transit, OUTS and the Camp Lejeune base buses. City of Jacksonville Coastal Area Management Act Land Use Plan (July 2011) The Costal Area Management Act (CAMA) Land Use Plan provides a short- and long-term planning vision for the City addressing topics such as environmental protection, economic development and growth, land use and transportation. Specifically pertaining to transportation, the CAMA Plan encourages alternatives to single-occupancy automobile trips in Jacksonville to reduce congestion and positively contribute to traffic flow. Further, the plan advocates for the exceptional design of facilities to foster a vibrant mixed-use downtown that retains the character of existing commercial and residential neighborhoods. Creating this vibrant downtown can be complemented by designing and maintaining governmental and civic facilities to serve as examples of the Citys commitment to high quality development. Jacksonville Transit System Development Plan (September 2011) The Transit System Development Plan (TSDP) identifies service needs and opportunities, reviews existing service performance and productivity and uses this information to lay out a strategic plan to address gaps and opportunities with the goal of improving service delivery over a five-year planning period. The TSDP calls for a multimodal center among other capital investments. The TSDP and the other plans indicate the potential for significant growth in the services offered by Jacksonville Transit and OUTS in the coming years. As routes and services are added to the network, the TSDP recommends that they evolve into a pulse system. With a pulse system, routes converge at a single location at the same time, pause to allow passengers to transfer among the systems, then depart in a coordinated manner. This type of service allows passengers traveling on one route/system to access destinations served by the other routes/systems. A pulse operation is an effective
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way to link all origins and destinations within a transit system safely and efficiently. Not only is a pulsing system more convenient for the user, but by coordinating services, redundancies can be eliminated, potentially improving the cost effectiveness of all systems accommodated by the center. NCDOT Plans and Policies Supporting a Jacksonville Multimodal Center NCDOT plans and policies relevant to this feasibility study are established in several documents including: Strategic Prioritization of Transportation Projects (February 2012) Draft Statewide 2040 Plan (March 2012) Statewide Regionalization Study (May 2012)

All of these documents collectively identify regional mobility, multimodalism and the efficient use of resources through coordination as priorities for the State of North Carolina with regard to public transportation. Of particular relevance to this feasibility study, the Strategic Prioritization of Transportation Projects identifies statewide transportation priorities based on objective criteria derived from the aforementioned statewide goals and objectives. Through an objective goal-driven prioritization process, the NCDOT ranked the Jacksonville area multimodal transportation center as the seventh highest public transportation priority statewide. This ranking was derived from a pool of more than 600 projects from both urban and rural public transit operators throughout the state. Very clearly, a multimodal transportation center for Jacksonville is consistent with NCDOT plans and policies. USDOT Plans and Policies Supporting a Jacksonville Multimodal Center US Department of Transportation (USDOT) plans and policies relevant to this feasibility study are most clearly set out in the federal Partnership for Sustainable Communities, which was created in 2009 as a partnership between the USDOT, US Department of Housing and Urban Development and the US Environmental Protection Agency. The Partnership for Sustainable Communities identifies six core principles guiding future federal investment.

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Partnership for Sustainable Communities The Livability Principles Provide more transportation choices. Develop safe, reliable and economical transportation choices to decrease household transportation costs, reduce our nations dependence on foreign oil, improve air quality, reduce greenhouse gas emissions and promote public health. Promote equitable, affordable housing. Expand location- and energy-efficient housing choices for people of all ages, incomes, races and ethnicities to increase mobility and lower the combined cost of housing and transportation. Enhance economic competitiveness. Improve economic competitiveness through reliable and timely access to employment centers, educational opportunities, services and other basic needs by workers, as well as expanded business access to markets. Support existing communities. Target Federal funding toward existing communitiesthrough strategies like transit oriented, mixed use development and land recyclingto increase community revitalization and the efficiency of public works investments and safeguard rural landscapes. Coordinate and leverage Federal policies and investment. Align Federal policies and funding to remove barriers to collaboration, leverage funding and increase the accountability and effectiveness of all levels of government to plan for future growth, including making smart energy choices such as locally generated renewable energy. Value communities and neighborhoods. Enhance the unique characteristics of all communities by investing in healthy, safe and walkable neighborhoodsrural, urban, or suburban.
Source: HUD-DOT-EPA Partnership for Sustainable Communities.

Clearly the first, third, fourth and sixth livability principles support the concept of a multimodal transportation center in Jacksonville. A Multimodal Transportation Center for Jacksonville What could a multimodal center in Jacksonville be like? A Jacksonville area multimodal center is expected to accommodate the operations of various transportation agencies including: Jacksonville Transit, OUTS, the Camp Lejeune base bus service, Greyhound and Amtrak. The center will also provide connectivity to other modes of travel including taxis, walking, biking and other future transportation systems servicing the region. Information Technologies (IT) will be an important asset in the multimodal hub, providing the mechanism to communicate internally among operators and externally with customers. Another service that may be facilitated by the creation of a multimodal center is a weekend shuttle between Jacksonville and Wilmington as a regional partnership with Wave Transit. The center would act as an essential hub for passengers to board/depart and connect with
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other forms of travel once they arrive in Jacksonville. Furthermore, the multimodal center could also serve as a hub for a future shuttle service to OAJ. Most importantly, the multimodal center will serve the everyday needs of passengers. Not only will passengers have a centralized hub providing access to multiple transportation services, the center will improve the convenience, comfort and safety of public transportation by creating a facility where passengers can obtain information about public transit services, await transfers among systems and rendezvous once reaching Jacksonville as a destination. Needless to say, the multimodal center will greatly improve the users experience with public transportation in Jacksonville. It is envisioned that the multimodal center will house the administrative offices of Jacksonville Transit, OUTS and the Jacksonville Metropolitan Planning Organization under one roof. Additionally, the one-call center, dispatch and street supervisors will also be located at the facility, with several other transit-related functions. Administrative staff for Greyhound and Amtrak could also potentially be housed within this facility. How could a Jacksonville multimodal transportation center be paid for? Multimodal transportation centers are eligible for funding under most USDOT grant programs and in particular those administered by the Federal Transit Administration (FTA). Federal funds typically support eighty percent of costs associated with developing these types of projects. Multimodal transportation centers are also eligible for state funds administered by the NCDOT Public Transportation Division. The City of Jacksonville may approach NCDOT for funding to support an additional ten percent of the project costs. The local obligation for capital transit improvements is generally limited to ten percent of the total project cost. Why is a multimodal transportation center needed in Jacksonville? Key findings of this study include: Establishment of a multimodal transportation center in Jacksonville is consistent with local, state and federal transportation and land use policies. A multimodal transportation center will serve as the focal point for public transportation within the community, improving coordination among the systems, resulting in greater operational efficiency and effectiveness.
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A multimodal transportation center will expand the mobility of citizens within the community and make travel seamless among all modes accommodated by the facility. A multimodal transportation center will improve the convenience, comfort and safety of public transportation by creating a facility where passengers can obtain information about public transit services, await transfers among transportation systems and rendezvous once reaching Jacksonville as a destination. The multimodal center can be located and designed in a manner that will enable it to grow with Jacksonvilles transportation systems and potentially contribute to smart growth patterns as well as downtown redevelopment. The local financial burden associated with the facility is minimal in proportion to the total project cost. Ninety percent of the development/construction expenses are eligible for federal and state grants. Operating costs of the facility are also eligible for state and federal funding; however, these costs may be offset by revenues generated from tenants within the facility - potentially including OUTS, Greyhound, Amtrak and private business.

Based on the findings of this study it appears that the creation of a Jacksonville multimodal transportation center is feasible and represents a sound investment of public (federal, state and local) funds to further quality of life within the Jacksonville community through enhanced local and regional mobility.

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